| Abstract: | 近年來台灣經濟成長遲滯、失業率上升、貧富差距擴大，生活陷入困境的人口逐年攀升，許多家庭面臨生計和兒童照顧問題，導致兒童虐待、疏忽和攜子自殺之不幸事件一再發生，社會福利政策所提供的貧窮兒童照顧機制，因中央與地方政府對政策認知不同、權責劃分、財政差異等面向的影響，致各地方政府的兒童照顧服務有所差別，尤以社會福利政策綱領修正後，強調中央與地方政府間的府際協調，致力於公私部門的夥伴關係理念，惟實際互動情形如何，則未見相關實徵研究，是故本研究透過府際關係與政策網絡相關理論的分析，深入了解我國現行中央、地方政府與民間部門對貧窮兒童照顧政策的認知與執行情形。 本研究採質性研究方法，訪談中央、地方政府及民間部門共計10個單位21名受訪者，蒐集與研究相關資料加以分析，獲得下列研究結果：一、當前台灣兒童照顧政策目標及實施原則符合國際潮流，並無明顯落差，但卻呈現立法落差與組織調適落差；二、各部門成員對貧窮兒童照顧政策，呈現各自詮釋的認知落差，出現中央政府消極因應、地方政府過於簡化、而民間部門高度期待的認知落差；三、在中央與地方的府際關係上，呈現「僅有形式的夥伴關係」，出現權責劃分落差、溝通協調落差、績效考核落差、經費補助落差及人力落差等現象；四、在地方政府間水平府際關係上，僅屬「有限互動的夥伴關係」，出現地域性落差、政策社群運作落差、人力落差、財政落差及服務輸送落差等現象；五、在公私部門互動關係中，中央與民間部門形成「遙遙相望的夥伴關係」，出現認知落差、期望落差、溝通落差及角色扮演落差；地方政府與民間部門間則屬「形式互依的夥伴關係」，出現認知落差、期望落差、以及服務能量落差。 綜合研究發現，本研究提出貧窮兒童照顧政策之網絡治理模式，強調多元參與途徑、民主商議過程、重視權利義務、建立共同目標與互利互信等原則；建議中央政府應加強「政策社群」的運作功能、建立決策所需關鍵資訊、重新檢視中央與地方的事權劃分、加強行政人員的專業能力以及提供各部門成員行政上的協助；地方政府亦應重視各委員會的運作功能、建立業務承辦層次的互動機制、加強地方政府間的聯繫、提升基層人員政策執行力以及積極協助民間團體成長；至於民間部門更應積極參與影響決策、自我成長減少對政府的依賴，以及善用策略聯盟，加強交流與合作。
In recent years, Taiwan has experienced social changes such as the downward economic growth, a rising unemployment rate, and rich-poor gap. The number of people living in difficulty is going up and many families are facing financial issues and child care problems, which resulted in frequent neglect, abuse, and parent-child suicide incidents. Under current policy regulations and child care services for poor families, the cognitive discrepancy, authority/responsibility distribution, and financial differences between central/local government have caused different services and standards in different areas. Moreover, after the amendment of the Social Welfare Policy Guidelines, the government focuses on strengthening the intergovernmental coordination between local/central government and building partnership between the government and private organizations. But the actual interaction is rarely examined and investigated empirically. Therefore, through analyzing intergovernmental relations and policy network theories, the present study aims at gaining a deeper understanding of current cognition and implementation of policies of child poverty care on levels of central government, local government, and private sector.The present study employed a qualitative approach of depth interview, in which a total of twenty-one subjects from ten departments of central government/local government and private sector were interviewed. Relevant empirical data was collected and examined, which leaded to five major findings. First, the goals and implementation principles of current child care policies in Taiwan are in correspondence with international trends without significant discrepancy, but there are gaps in legislation and organizational adjustment. Second, members of different departments have discrepancies in interpretation of child poverty care policies: a passive stand for the central government, over-simplification for the local government, and a high expectation on the private sector’s side. Third, regarding the intergovernmental relation between central/local government, a “skin-deep partnership” exists along with gaps in authority/responsibility distribution, communication/coordination, performance evaluation, financial support, and human resource. Forth, regarding the horizontal intergovernmental relations, “partnership with limited interaction” exists along with gaps in different areas, policy community operation, human resource, finance, and service delivery. Finally, during the interaction between public/private agencies, the government and private sector formed a “looking-at-each-other-from-a-far-distance partnership” with gaps in cognition, expectation, communication and roles. Meanwhile, the local government and private sector developed a “codependent partnership only on the face” with gaps in cognition, expectation, and service capacity.Summing up the research findings, the present study proposed a network governance model for care polices of poor children. The model emphasizes on the principles of multiple avenues of participation, democratic discussion process, highlighting rights and duties, developing shared goals and mutual trust/benefit. It is suggested that the central government should strengthen the operative function of the policy community, collect the critical information needed for decision making, and reevaluate the distribution of authority between central and local government, enhance the professional competency of administrative staff, and provide administrative assistance for departmental members. Also, the local government should appreciate the operative function of committees, develop the interactive mechanism on the task execution level, promote the connection between local governments, enhance the ability of policy implementation for the street-level bureaucrats, and actively help the private organizations to grow. The private organizations should actively participate in policy making process, develop self-sufficiency so to reduce their dependence on the government, make good use of strategic alliances, and strengthen the interaction and cooperation between each others. |
